Agenda item

The Committee considered the undernoted report and the contents of the associated Council response.

 

“1  Relevant Background Information

 

1.1Queen’s Quay is located on the eastern bank of the river Lagan and is bounded by the M3 flyover to the north, the Queen’s Bridge to the south, the river Lagan to the west and the Station Street Flyover to the east.

 

1.2The Masterplan consultation document prepared by DSD contains an analysis of the area, the main regeneration principles and the options for its future development.

 

1.3Following consideration of any consultation responses, DSD have propose that the adopted Masterplan will set out guidance on the proposed range, mix and location of uses for the Queen’s Quay area. DSD may use the adopted Masterplan to formulate further development briefs to guide how parts of the site will be developed in the future.

 

1.4The Queens Quay area has been the subject of various proposals going back to the Laganside Concept Plan in 1987. A development brief was issued for this area in 2005, however, neither Laganside Corporation nor DSD were able to proceed with developing this area at that time. The development of Queen’s Quay is considered key to stimulating regeneration of the ‘shatter zone’ that lies to the east of the site.

 

2    Key Issues

 

2.1The Department for Social Development (DSD) is seeking to promote the regeneration plans for Queen’s Quay in recognition of the potential to build on the significant recent developments that have taken place including: Titanic Quarter; Obel; The Boat; and Victoria Square.

 

      Masterplan Proposals

 

2.2The draft Masterplan contains a number of proposals and identifies a phased approach to how the preferred development of the site could be envisaged.

 

2.3The mixed use proposal in the document would if fully developed result in an 18 storey (4 star) hotel; 278 Residential units; and 8,000 sq m of leisure uses.

 

2.4A key assumption taken in the Masterplan is that the Station Street flyover is removed. It should be noted that planning approval for removal of the flyover was granted in 2007 but is now approaching its expiry date. The removal would obviously require the rationalisation of the existing highway network in the area

 

2.5The draft Masterplan for the site proposes a land mark tower which would offer views across the city and incorporate the zip-line, which has been installed in this area previously as part of charity events, on a permanent basis.

 

2.6An upgrade to the weir crossing, public realm improvements, and an urban park beneath the motorway bridge are all included in the proposals and as part of the phased approach the sites awaiting development will be available for public use for example, parks and exhibition space.

 

 

 

      Key Issues for BCC

 

2.7The Queen’s Quay site is in a key location between the City Centre and Titanic Quarter, however, in its current physical state the area acts less as a connection and more as a barrier to movement. In this context the Council would welcome the DSD focus on what is a pivotal waterfront area, being traversed by increasing numbers as the City Centre, Waterfront Hall and Titanic Quarter continue to develop.

 

2.8Short term improvements to this site should address the neglected nature of the area through improved signage and more effective maintenance of the built environment and street furniture in the areas adjacent to the Weir. In addition short term actions to remove graffiti around the bridges and flyover could enhance the environment for existing users.

 

2.9The draft document identifies the strategic importance of the site in terms of major roads, bus routes and the existing cycle network. However there is no reference to or recognition of the proposed rapid transit routes recently identified by the Department for Regional Development in their preferred route options paper.

 

2.10     The CITI Route preferred option runs adjacent to the Queens Quay site using the Queen Elizabeth Bridge, Queen’s Quay and Queen’s Road into Titanic Quarter, and returning to the city centre via Station Street , Bridge End and Queens Bridge.

 

2.11     In addition to the CITI Route the ‘next best’ option for the EWAY route utilises the Newtownards Road and the Queen Elizabeth Bridge to the south of the Queen’s Quay Site, meaning that two of the three rapid transit routes initially proposed will be running adjacent to the Site.

 

2.12     The final Masterplan for this area must integrate the consideration of this major city development into the proposals for preferred development. The rapid transit route in addition to enhancing access could be a mechanism to kick-start development of this site.

 

2.13     The Masterplan makes the key assumption that the removal of the Station Street flyover will take place, based on an existing planning approval. However until the feasibility studies are completed, and agreement has been reached, the deliverability of this aspect of the overall scheme must be questioned. The document should provide alternative development options for the site which do not rely on the removal of the Station Street flyover and incorporate proposals for rapid transit. There is also limited consideration of the connectivity for cyclists and pedestrians to the surrounding areas.

 

2.14     The consultation document includes a new boardwalk and improvements to the weir along with design proposals for buildings that overhang the river edge. The Council is disappointed that the draft Masterplan has given no consideration to proposals for a new lock at this location. The lagan corridor features in both the draft Belfast City Masterplan and recently published Investment Programme and discussions have been ongoing in relation to the studies and potential along the Lagan.

 

2.15     The Council would propose that the significant opportunity to add a new lock at Queen's Quay is included in the final Masterplan and that the preferred developments identified do not prejudice development of a new lock at this location.

 

Council Response

 

Introduction

 

This document is a response from Belfast City Council to the Department of Social Development relating to the public consultation on the ‘Queen’s Quay Belfast Draft Masterplan Document’.

 

Belfast City Council welcomes the opportunity to comment on the draft Masterplan proposals for this strategically important site.

 

The Queen’s Quay site is in a key location between the city centre and Titanic Quarter, however, in its current physical state the area acts less as a connection and more as a barrier. In this context the Council would welcome the DSD focus on what is a pivotal waterfront area, being traversed by increasing numbers as the City Centre, Waterfront Hall and Titanic Quarter continue to develop.

 

The Council acknowledges the past difficulties experienced in bringing development of this site to fruition and welcomes the progress the draft Masterplan represents. The Council has considered the content of the draft Masterplan and identified a number of issues in the response below.

 

The Site

 

The Queen’s Quay site is located in an important location to act as a pivotal connection between not only the Titanic Quarter and City Centre but also between the East of the City and the City Centre. Obvious physical constraints to the site include the River Lagan, M3 Motorway bridge, and the Station Street flyover. The numerous car parks in the area contribute to the experience of disconnection when travelling through the area.

 

The site currently suffers from poor environmental quality and a feeling of disconnect towards the rest of the city particularly in an easterly direction, identified in the consultation document as the ‘Shatter Zone’.

 

Short term improvements to this site should address the neglected nature of the area through improved signage and more effective maintenance of the built environment and street furniture in the areas adjacent to the Weir. In addition short term actions to remove graffiti around the bridges and flyover enhance the environment.

 

To the south west of the site, on the western side of the river, sits the Waterfront Hall which is the subject of a funding bid by the Council to develop a £20million extension for provision of dedicated conference and exhibition facilities. This will help strengthen Belfast’s offer to this market and further develop this wider waterfront area into a key location in the City Centre.

 

 Connectivity

 

The draft document identifies the site’s strategic importance in terms of major roads, bus routes and the existing cycle network however there is no reference to the proposed rapid transit routes recently identified by the Department for Regional Development in their preferred route options paper.

 

The CITI Route preferred option runs adjacent to the Queens Quay site using the Queen Elizabeth Bridge, Queen’s Quay and Queen’s Road into Titanic Quarter, and returning to the city centre via Station Street, Bridge End and Queen’s Bridge. The future development of this site must have cognisance of the proposed  CITI Route and the potential benefits rapid transit can bring to areas along the route, yet the draft Masterplan does not make any reference to the potential impact rapid transit could have on the site insofar as investment opportunities or impact on road infrastructure.

 

In addition to the CITI Route the ‘next best’ option for the EWAY route utilises the Newtownards Road and the Queen Elizabeth Bridge to the south of the Queen’s Quay Site, meaning that two of the three rapid transit routes initially proposed will be running adjacent to the Site.

 

The final Masterplan for this area should reflect the potential for this significant city development in its proposals for preferred development, both in the orientation of the proposed buildings and for the permeability of the site. The rapid transit route could be the mechanism to kick-start development of this site which in the past has struggled to attract development.

 

The Masterplan makes the key assumption that the removal of the Station Street flyover will take place, based on an existing planning approval. However until the feasibility studies are completed, and agreement has been reached, the deliverability of this aspect of the overall scheme must be questioned.

 

Considering the existing planning approval for the removal of the flyover is approaching its conditioned expiry date the final Masterplan should provide alternative development options for the site which do not rely on the removal of the Station Street flyover and incorporate proposals for rapid transit.

 

There is also limited consideration of the connectivity for cyclists and pedestrians to the surrounding areas particularly to the residential area to the south of the site.

 

The ‘inward concave design…encouraging people to look away from the noisy and harsh environments….’ described in the consultation document appears to have little regard to the existing permeability issues currently faced by east-west movements in this area and turns its back on the ‘shatter zone’ located further to the east. A preferable design would aim to ameliorate the impacts of the existing transport infrastructure whilst encouraging movements into, and through, this site in an east-west direction as well as a north-south direction.

 

The development proposals must take account of the existing walking and cycling routes throughout the site. A better connection to the walking trail to the south of the site along the eastern bank of the river, including a pedestrian crossing would improve access and contribute to the wider permeability of the waterfront area.

 

Development Concept

 

Maximising the development potential of the site as a strategic link is a welcome element of the DSD vision for the area as are the aims to create a quality public realm with improved connections. The design concept must fully incorporate the theme of permeability for cycling, walking and public transport within and through the site.

 

Greater consideration should be given to the quantum of similar uses already proposed for this vicinity. Proposals exist for the Scirocco site, City Quays on the west bank of the river, Titanic Quarter, and the land adjacent to the Odyssey complex all of which contain high numbers of residential units. The draft Masterplan proposals and the suggested density must be considered in this context. Whilst the Council acknowledge the proposed phased development of the site, uncertainty for developers through over-supply of mixed-use land should be avoided.

 

Short term action to secure public realm improvements could be achieved in this area, particularly around the pedestrian access from the weir. We would strongly recommend the public realm improvements of Phase 1 are implemented as soon as possible.

 

The Council would support more flexibility in the proposed uses to allow for viable alternative schemes to be developed for this site. A Masterplan which identifies potential developments is welcomed but the content should not prejudice the planning process of other suitable proposals on this site.

 

The Council are concerned that the ‘inward concave design’ proposed in the Masterplan will reinforce the shatter zone to the east of the site and not address the challenge of the M3 and other bridges.

 

The final design concept should recognise the increasing amount of cycling infrastructure in the area, for example the national cycle network, the comber greenway, and the cycle lanes being installed along the Sydenham Road and re-opening of Fraser Street and facilitate further cycle movement through the site. Belfast City Council would advocate the inclusion of cycle considerations in development proposals which including cycle access and safe cycle parking.

 

The site is located within the Belfast City Centre Fringe Area of Parking Restraint in the draft Belfast Metropolitan Area Plan and the Council would suggest that provision of parking at this site is kept to a minimum in consideration of the city centre location and proximity of existing transport options (Bridge End Rail Halt, Laganside Bus Centre, Central Station) along with the proposed rapid transit routes outlined previously.

 

The new cross harbour pedestrian and cycle bridge must be developed with involvement of key stakeholders including Belfast Harbour Commission, the Odyssey Trust, Belfast City Council and DSD. The design of this bridge must not limit or prohibit the use of this part of the river Lagan.

 

 

 

Provision of a New Lock

 

The consultation document includes a new boardwalk and improvements to the weir along with design proposals for buildings that overhang the river edge. The Council is disappointed that the draft Masterplan has given no consideration to proposals for a new lock at this location. The lagan corridor features in both the draft Belfast City Masterplan and recently published Investment Programme and discussions have been ongoing in relation to the studies and potential along the Lagan.

 

Belfast City Council had an economic appraisal undertaken in 2009 which concluded that the restoration of the Lagan would contribute to an investment which would drive the City's tourism/recreational and hospitality industries, and result in increased visitor numbers to Belfast, increased visitor spend and the creation of jobs. The development of the Lagan could stimulate further development of water-side properties, particularly in the tourism, hospitality, recreation and leisure sectors. The real economic impact of proposals to restore the Lagan Navigation would not be captured solely by projected lock receipts and mooring income, but would be realised by Belfast's wider tourism, health and well being activities, recreational and hospitality industries in terms of visitor spend, job creation, increased tourism expenditure/associated multiplier effects etc. Belfast City Council expects the reopened Lagan navigation would have a number of economic benefits, and according to the 2008 Lagan Gateway Scoping Report the impact of visitor expenditure on the opening of the entire Lagan Navigation (Lagan weir to Lough Neagh) could be £2.1m per annum which could support 60 full time equivalent jobs.

 

BCC has plans to undertake a number of restoration and development works that would facilitate the reopening of 9km of the Lagan from Belfast Harbour to Lock 3 at Shaw's Bridge.

 

The £7bn Titanic Quarter phased development includes the development of the Abercorn Basin into a busy marina a development that will attract boat and river users up the River Lagan. The Lagan Weir currently acts as a barrier preventing navigation up the river dependent on the gates being lowered and certain tidal conditions as Belfast embraces its maritime heritage and seeks to build on the past the need for a new lock at Queen's Quay to bypass the Lagan Weir ought to be a part of the restoration of the Lagan.

 

A fully navigable Lagan could facilitate the creation of an all island East- West waterway, allowing boat users to travel from Belfast Lough to Limerick via the Ulster Canal, the Shannon- Erne waterway and the Shannon. This is dependent on the reinstatement of the Ulster Canal. Boats would also be enabled to travel north to Coleraine via Lough Neagh and the Lower Bann navigation and west to Belleek via the Ulster Canal and Erne Waterway.

 

The Council believes that the restoration of the Lower Lagan as proposed by the 2009 economic appraisal and 2008 scoping study would mark a key milestone in the campaign to reopen the entire lagan navigation and would play a significant part in raising the profile of the waterway's restoration potential and ultimately the creation of an all Ireland network.

 

The Council would propose that the significant opportunity to add a new lock at Queen's Quay is included in the final Masterplan and that the preferred developments identified do not prejudice development of a new lock at this location.

 

Conclusion

 

Belfast City Council welcomes the creation of a Masterplan for the Queen’s Quay area that promotes an animated waterside area with improved environmental quality, suitable developments, and pedestrian links to surrounding areas.

 

This response identifies a number of issues which the Council believe should be addressed before the final Masterplan is published.

 

Our main concerns include the lack of recognition of the proposed Rapid Transit routes; the absence of the potential for a new lock; and the absence of alternative options which do not rely on the removal of the station street flyover.

 

There is an emphasis throughout the document on pedestrian connectivity but provision for cycling infrastructure through the Queen’s Quay area could be incorporated into the design to a greater extent with clear connectivity to the surrounding area including a connection to the existing path to south of the site.

 

The Council is pleased to have the opportunity to comment on this important Masterplan and would be happy to further discuss any of the issues contained within this response with DRD officials.”

 

            During discussion, a Member stated that there existed currently a wide range of consultation documents in respect of the development of the City. The point was made that there was a perception that there was a lack of coordination in the delivery of these projects at a strategic level.  It was suggested, given the perceived lack of leadership in this regard and the changes which would arise as part of the Review of Public Administration, that the Council should seek to explore the feasibility of leading on the delivery of certain projects, especially those which would enhance the aims and objectives as set out within the Council’s Investment Programme.

 

            After discussion, the Committee agreed to endorse the response to the consultation and agreed that a report be submitted to a future meeting which would outline the Council’s potential role in leading on City-wide regeneration issues in partnership with other bodies and agencies.